2000-01 Draft Budget of the Department of Education and ... · 1 1. Background 1.1. On 9 December...

LEGISLATIVE ASSEMBLY FOR THE AUSTRALIAN CAPITAL TERRITORY

Standing Committee on Education, Community Services and Recreation

2000-01 Draft Budget of the

Department of Education and Community

Services and Related Agencies

Report No 5

March 2000

Committee membership

Ms Kerrie Tucker MLA (Chair)

Mr Wayne Berry MLA (Deputy Chair)

Mr Harold Hird MLA

Secretary: Ms Judith Henderson

Resolution of appointment

The following general purpose standing committees be established to inquire into and report on matters referred to it by the Assembly or matters that are considered by the committee to be of concern to the community:

…a Standing Committee on Education, Community Services and Recreation to examine education, schooling, training services, children’s, youth and family services and sport and recreation and any other related matter.

Minutes of Proceedings, No 2, 28 April 1998, pp 15-19. Amended 25 November 1999.

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Table of contents

Committee membership ............................................................................................................................... ii

Resolution of appointment........................................................................................................................... ii

TABLE OF CONTENTS ......................................................................................III

1. BACKGROUND............................................................................................1

2. CONDUCT OF THE INQUIRY ......................................................................3

3. THE DRAFT BUDGET PROCESS ...............................................................5

4. FUNDING ISSUES........................................................................................9

Maintenance of real expenditure on government schools ..........................................................................9 The Council of Parents and Citizens Association’s (Council of P&Cs) submission..................................9 The Government’s response .....................................................................................................................11 Audit report ..............................................................................................................................................18 Committee’s conclusions .........................................................................................................................19

FUNDING PRIORITIES ......................................................................................19 Goods and services tax (GST)..................................................................................................................19 Teacher salaries ........................................................................................................................................21 Social and Community Services (SACS) Award .....................................................................................22 Care and Protection services ....................................................................................................................23 Child Health and Development Service (CHADS) ..................................................................................25 Family and community support and community development ................................................................26 Student welfare.........................................................................................................................................27 Literacy ....................................................................................................................................................29 Students with disabilities..........................................................................................................................29 SAAP services..........................................................................................................................................30 Canberra Institute of Technology.............................................................................................................31 Youth services ..........................................................................................................................................33 Services for men.......................................................................................................................................34

5. PLANNING ISSUES ...................................................................................35

Assessing unmet need and cross portfolio planning .................................................................................35

6. OTHER SIGNIFICANT ISSUED RAISED...................................................37

Non-government schools .............................................................................................................................37

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Concessions and community service obligations.......................................................................................38

APPENDIX 1 BRIEF SUMMARY OF ISSUES RAISED IN SUBMISSIONS ....41

APPENDIX 2 GOVERNMENT RESPONSE TO ISSUES RAISED IN ................. SUBMISSIONS .........................................................................51

APPENDIX 3 SUBMISSIONS RECEIVED 85

APPENDIX 4 WITNESSES AT PUBLIC HEARINGS 87

APPENDIX 5 DISSENTING REPORT—MR HAROLD HIRD MLA ...................89

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1. Background

1.1. On 9 December 1999, the Assembly resolved that:

(1) the draft 2000-01 Budget for each appropriation unit be referred to the relevant General Purpose Standing Committee, to consider the expenditure proposals, revenue estimates and the capital works program for each portfolio and make recommendations that maintain or improve the operating result;

(2) the draft total Territory financial position be referred to the Standing Committee on Finance and Public Administration (incorporating the Public Accounts Committee);

(3) the relevant draft budget documents be provided by the Treasurer to the Presiding Member of each Standing Committee by 17 January 2000;

(4) the Committees report by 28 March 2000; (5) if the Assembly is not sitting when the Committees complete their

inquiries, the Committee may send their reports to the Speaker or, in the absence of the Speaker, to the Deputy Speaker who is authorised to give directions for its printing, circulation and publication;

(6) the foregoing provisions of this resolution have effect notwithstanding anything contained in the standing orders.1

1.2. The draft budget for the Department of Education and Community Services covers Government School Education, Non-Government School Education, Vocational Education and Training, Children’s Services, Youth Services, Family Services, and Sport and Recreation.

1 Minutes of Proceedings, No 73, 9 December 1999, p 677.0

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2. Conduct of the inquiry

2.1. The referral of the draft budgets to standing committees and details of how the community could participate was advertised in the local press in early January 2000. Submissions were requested by 14 February 2000. In addition, letters inviting input were sent to organisations expected to have an interest in the inquiry.

2.2. A total of 16 submissions were received. A list of submissions is at Appendix 3.

2.3. Officials from the Department of Education and Community Services provided the committee with a comprehensive briefing on the structure of the budget on 14 February 2000.

2.4. The committee requested a response from the Government to issues raised in the submissions, received by 28 February 2000. The responses can be found at Appendix 2.

2.5. The committee conducted two public hearings. The first was held from 2.30 pm to 6 pm on 22 February 2000 at which the Minister for Education, Mr Stefaniak MLA and departmental officials appeared.

2.6. The second was held from 1.30 pm to 5 pm on 24 February 2000 when a number of community groups gave evidence. Details of those who appeared are at Appendix 4.

2.7. While it may appear that the committee had almost 10 weeks to consider the draft budget, in reality the timeframe was very limited. It was necessary to allow the community several weeks to make a response to the draft budget before holding public hearings. Many questions arose from the submissions and public hearings that then required a response from the Minister for Education. The committee then only had a few days to consider all the information and finalise its report.

2.8. Unfortunately, the committee’s brief from the Government and the Assembly restricted it to making recommendations that either maintain or improve the budget position. It was not able to make recommendations calling for additional funding, even though the Government was advised during the consultation period that it is to receive an additional $17m from the Commonwealth for the 2000-01 financial year. If the committee were to make recommendations that did not affect the bottom line it would have to make

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decisions about which areas were to receive a cut in funding as well as areas where funding should be increased. Prioritisation must occur within the context of whole of government expenditure. It is particularly unsuitable to expect such prioritisation to occur in this portfolio area where many of the services are stretched. As the committee is not able to make recommendations about funding matters, it will make specific numbered comments and draw the Government’s attention to funding priorities.

2.9. The committee wishes to thank all those who participated in this inquiry.

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3. The draft budget process

3.1. While welcoming the opportunity to contribute to the budget process, many organisations were critical of the process. The major criticisms were:

• the timeframe was unrealistic;

• it placed an extremely heavy workload on organisations with an interest in many portfolio areas as they needed to put in a separate submission to each standing committee;

• the process was fragmented and could not deal effectively with issues that range across portfolio areas;

• the budget papers lacked transparency—it was difficult to determine the impacts of new initiatives, the real changes in expenditure patterns, and the level of Commonwealth funding; and

• the budget papers need some form of index to assist readers.

3.2. The committee is sympathetic to these concerns, however also found the process to be worthwhile in some respects, even though there are still concerns about how much information was provided. It gave the committee and the community an opportunity to develop a more detailed understanding of the budget. It gave the committee a greater understanding of the community’s view of priorities. There has been concern in the past that the Government’s consultation process has been flawed because the Government appeared not to give clear reasons for rejecting proposals. It is important therefore, that the Government is diligent in addressing all issues raised by the community during this draft budget process. If this does not occur all we will have achieved is a duplication of the Estimates process.

3.3. There are different views in the committee about the Government’s responsibilities in relation to the budget. One member is of the view that it is totally the responsibility of the Government to consult with the community and develop the budget. Others could see some benefits with the draft budget process.

3.4. The committee noted a number of other problems with the process. There was considerable confusion in the community about the process. Some groups sent submissions to the Treasurer with an expectation that they would be forwarded to the committee. This did not happen.

3.5. Others thought that the committee’s role was to decide on grants and service purchasing arrangements. In fact, in one case a community organisation

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was encouraged by the Minister for Education to make a submission to the committee to seek funds for the continuation of a legal service for low-income people. The committee considers that this was most inappropriate. There is a process for the allocation of funds under service purchasing arrangements and under the Community Grants Program. The Department of Education and Community Services is responsible for hundreds of grants and service purchasing contracts and is staffed for this purpose. The committee does not have the information on needs nor resources to enable it to undertake such a task.

3.6. It seems that the Government itself was also confused about the process. The community organisation mentioned above not only put in a submission to this committee, but was also encouraged to put one in to the Justice and Community Safety Committee as the service is a legal service. On 25 February 2000, long before the committees had completed their inquiries, the organisation received a letter from the Attorney General advising that funding for the service could not be made from a budget allocation.2 On 17 March 2000, the committee received a response to issues raised in the submissions to the Standing Committee on Education, Community Services and Recreation from the Minister for Education who advised:

Responsibility for funding for this service rests with JACS [Department of Justice and Community Safety]. JACS has advised that they are unable to comment on this matter at this stage in the budget cycle.3

3.7. Yet the Attorney General and Treasurer had already commented three weeks earlier, pre-empting any conclusions that may have come out of committee work! The Government through its inconsistent and contradictory responses has undermined the credibility of the committee process. The committee believes that this organisation has been treated very poorly.

Recommendation 1

3.8. The committee recommends that the Government explain to the Assembly how the service purchasing and grants allocation processes fit into the draft budget process.

3.9. As ACTOSS pointed out, none of the key result areas in the draft budget relate directly or indirectly to the achievement of social outcomes. The Department of Education and Community Services, as the funding body for a wide range of social and community services, has a vital stake in the achievement of

2 Attorney General, correspondence to CARE dated 25 February 2000. 3 Minister for Education, correspondence dated 17 March 2000.

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social outcomes.4 The committee is of the view that the Government needs to develop ways which demonstrate in the budget papers that it has a commitment to achieving social objectives.

Recommendation 2

3.10. The committee recommends that in future budget papers the Government address the issue of accountability for social outcomes.

3.11. The committee believes that this budget process has identified, through community submissions, under resourcing in many important community services. The Government has provided no information that argued against this. The committee is unable to identify the exact level of unmet need and the resourcing required to meet it as the Government does not appear to have the information. It needs to be kept in mind that much of the community services sector is servicing very vulnerable members of the community.

3.12. The budget process has also identified a need for a greatly improved inter-sectoral approach to accommodate social issues. In relation to Government School Education, while the Government claims high expenditure and maintenance of funding in real terms, schools are facing real difficulties. Teacher morale is low as teachers are having to deal with an increasing number of students at risk without adequate support from other agencies. An improved inter-sectoral approach would result in greater resourcing for support services for students at risk from agencies other than the Department of Education and Community Services.

4 Submission 13.

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4. Funding issues

Maintenance of real expenditure on government schools

The Council of Parents and Citizens Association’s (Council of P&Cs) submission

4.1. During the 1998 election campaign, the Government made a commitment to maintain primary and secondary schools funding in real terms.

4.2. The ACT Council of Parents and Citizens Associations Inc claimed that there is reason to believe that real expenditure on primary and secondary school funding is declining.5 The Council reported that there is not sufficient publicly available information to determine whether the Government kept its promise to maintain funding in 1998-99 compared to 1997-98. Using the cash outcome in the 1998-99 budget for government schools as a base, the Council claims that funding in real terms has not been maintained and over the two years there has been a shortfall of $9.72m.6 The reasons given by the Council are:

• the Government withdraws from the Government Schools budget each year an efficiency dividend; and

• indexation for inflation is applied to a schools expenditure estimate that is less than total government expenditure on schools.

4.3. The Council claims that the popular understanding of the Government’s election commitment is that it will maintain total real expenditure on government schools. However in the budget papers this common sense interpretation has been transformed into something much more restrictive. Indexation of total expenditure at 2.5 per cent would involve at least another $7.75m. According to the Council, the Government has failed to meet this common sense interpretation. It has also failed to meet the narrower interpretation of total funding as comprising the total GPO and the injection for operating requirements as the basis for indexation.7

4.4. The 2000-01 draft budget papers indicate that indexation has been based on $219.5m rather than the total cash funding of $265.9m. The following items have not been included in the amount indexed:

5 Submission 6. 6 ibid. 7 Submission 16.

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• ACT Superannuation $29.046m

• Capital charge $11.918m

• Commonwealth Specific Purpose Payments $ 4.004m

• Insurance $ 1.487m8

4.5. The same method to calculate indexation was used in the 1999-2000 budget.

4.6. The Council of P&Cs claims that at the very minimum the total of the GPO and the injection for operating requirements should be used as the basis for indexation and not an amount adjusted for superannuation, capital charges and Commonwealth Specific Purpose Payments.

4.7. According to the Council such an approach would be consistent with the definition of per student expenditure adopted by Commonwealth, State and Territory governments in presenting national data on schooling expenditure. The Report on Government Services 2000, includes superannuation and Commonwealth payments in its calculation of total government expenditure on government schools.9 The Council advised that the report also recommends that the user cost of capital should be included in cost estimates for government schools.

4.8. The Council also claimed that the high retention rates are not taken into account in the GPO and the system of comparative pricing of outputs to determine budget estimates of expenditure is conceptually flawed. In its view the approach is designed to reduce expenditure to an adjusted average rather than to maintain funding standards for schools. It fails to take full account of the outcomes achieved by different levels of expenditure.10

4.9. The Council asserted that the reduction in the injection for operating requirements in the out years is another reduction in funds available to government schools. It argued that, given the purpose of the injection within the system of comparative pricing is to maintain operations while action is taken to pursue greater efficiency and effectiveness, this reduction is an efficiency dividend for the ACT Treasury. The Council believes that the savings from cost reductions and efficiency improvements should be retained in the government schools’ budget as

8 Draft Agency Budget Estimates, p 228. 9 Report on Government Services 2000, p 115. 10 Submissions 6 and 16.

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the Government’s commitments to maintain funding were not qualified to exclude savings from more efficient delivery of services.11

The Government’s response

4.10. The committee asked the Minister a number of questions on notice in relation to the Council of P&Cs claims. The Minister provided the committee with the following information.12

There is no efficiency dividend applied to Government Schooling.

The maintenance of Government School funding is through the application of the Consumer Price Index to the combined Government Payment for Outputs and Operating Injection for Government Schooling. The estimated CPI rates used for funding purposes and the actual CPI rates for the period are as follows:

97-98 98-99 99-00 00-01

Estimated 2.0 1.8 2.5 2.5

Actual (0.7) 0.9 - -

For the purposes of calculating the impact of the CPI, several items provided for in the GPO/Operating Injection are excluded because their funding is provided on a basis which ensures that they are sufficient to cover actual costs incurred. These items are as follows.

Commonwealth Special Purpose Payments. The purpose and level of funding is determined by the Commonwealth. The ACT only spends what is provided for the purposes for which it is provided. For on-going grants the Commonwealth provides indexation. There are no grounds for the ACT indexing this amount.

Employer Superannuation. Each year, the department’s superannuation obligations are fully funded. As the funds are received they are immediately paid back to Consolidated

11 Submission 16. 12 Minister for Education, correspondence dated 15 March 2000.

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Revenue. There is no purpose in indexing this amount since the amount provided is sufficient to meet the obligation.

Capital Charge. Each year, the Territory’s overall debt servicing cost is apportioned to agencies based on their fixed asset holding. The amount is fully funded. As funds are received they are immediately paid back to Consolidated Revenue. There is no purpose in indexing this amount since the amount provided is sufficient to meet the obligation.

Insurance. Each year, the Territory’s insurance costs (mainly public liability and catastrophe insurance) are apportioned to agencies. The amount is fully funded. There is no purpose in indexing this amount since the amount provided is sufficient to meet the obligation.

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Maintenance of funding calculations – 1997-98 to 2000-01

4.11. The Minister provided the following information on details of maintenance of funding calculations since 1997-98.13

1997-98 $m

GPO base from prior year 230.3

Operating Injection from prior year N/a

Less:

Capital works funding included in GPO (21.8)

Commonwealth grants funding indexed (1.5)

by the Commonwealth

Indexation Base 207.0

Indexation @1.8% 3.8

1998-99 $m


Operating injection from prior year N/a

Less:

Capital works included in GPO (17.0)

Commonwealth grants funding indexed

by the Commonwealth (2.7)


Indexation @ 1.8% 3.8

13 Minister for Education, correspondence dated 15 March 2000.

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1999-00 $m


Operating injection from prior year 6.7

Less:

Commonwealth grants funding

indexed by the Commonwealth (2.5)

Employer superannuation (35.0)

Capital charge (12.0)

Insurance (2.0)

Enrolment adjustment (0.5)



2000-01 $m


Operating injection from prior year 2.3

Less:

Commonwealth grants funding

indexed by the Commonwealth (4.0)

Employer superannuation (29.0)

Capital charge (11.9)

Insurance (1.5)



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Changes in funding for Government Schooling from 1997-98 to 2000-01

4.12. The Minister provided the following information.

1997-98 $m

GPO 230.1

Operating Injection N/a

Total Funding 230.1

1998-99

Cash

Indexation 3.8

Teachers’ increments 1.3

Comcare base adjustment 0.5

Adjustment to Commonwealth grant funding 1.3

Enrolment Adjustment (1.0)

Technical

Transfer of Capital Works to Capital Injection (17.0)

Inclusion of superannuation 29.1

Inclusion of capital charge 12.4

Inclusion of insurance 1.5

Total Funding (1) 262.0

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1999-00 $m

Cash

Indexation 5.2


Adjustment to Commonwealth grant funding 2.4

Various minor adjustments 0.4

Enrolment adjustment (0.5)

Technical

Cost attribution adjustment (prior years) 0.8

Cost attribution adjustment (current year) (2.7)

Benchmarking adjustment (3.4)


2000-01 $m

Cash

Indexation 5.5


Technical

Cost attribution adjustment 0.2

Adjustment to superannuation funding 0.2

Adjustment to capital charge funding (0.9)


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(1) Total funding for 1998-99 of $262.0m comprised:

• $255.3m GPO

• $6.7m Operating Injection


• $263.2m GPO



• $268.9m GPO


4.13. The Minister made the following comments in relation to the changes in funding for Government Schooling over the period.

• Prior to 1998-99 costs and revenue for employee superannuation, capital charge and insurance were not devolved to agencies.

• From 1998-99, capital works funding was treated as an ownership rather than a purchaser matter. It was therefore removed from GPO and replaced as a capital injection which varies each year based on the approved capital works program.

• Each year, the apportionment of central office overhead costs are attributed according to various cost item formulae. The apportionment of these costs to a particular output may therefore vary between years.

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• Variations in student enrolments affect funding. Enrolment variations are taken into account prior to finalising the base GPO/Operating Injection for maintenance of funding purposes.

• Only Government Schooling has been benchmarked - thus other outputs have a zero operating deficit. An adjustment was necessary in 1999-00 to correct an adjustment made in 1998-99 (which resulted in all outputs showing an operating deficit).

4.14. In response to the Council of P&Cs’ concerns about how the high retention rates in years 11 and 12 in the ACT are taken into account in estimating the GPO, the Minister advised that:

The Commonwealth Grants Commission took account of retention rates when assessing relativities between the states and territories. In the Commission’s 1999 relativities review, the ACT successfully argued that the Commission’s use of average participation rates to calculate the numbers of non-compulsory school students failed to recognise that it was mainly socio-economic status rather than a state’s policy which resulted in its higher retention rates. As a consequence, the Territory’s standardised expenditure (for Grants Commission purposes) has been adjusted to reflect the impact of higher retention rates. This outcome had no impact on the Government Schooling GPO since the Commission’s work focuses on costs already being incurred, and therefore funded, by the ACT. The Commission’s purpose is to provide a basis for the distribution of Commonwealth funding.14

Audit report

4.15. The Council of P&Cs requested an independent audit of the Government Schools budget since 1997-98.

4.16. The Minister for Education announced on 3 March 2000 that KPMG had been engaged to undertake an audit.

4.17. The Minister advised that the results of the audit would be provided to the committee when available.


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Committee’s conclusions

4.18. The committee understands how the community could have serious doubts that the Government has not maintained funding for Government Schools in real terms. There are inconsistencies in definitions between the Commonwealth’s approach to the definition of ‘per student expenditure’ and the ACT’s interpretation of ‘per student expenditure’ in the draft budget papers and there are different understandings of the term ‘efficiency dividend’.

4.19. There are also different views about the interpretation of the Government’s promise.

4.20. The Committee agrees with the P&C Council that benchmarking can be an over simplification which does not take into account the realities of service provision in specific areas.

4.21. At the time of the finalisation of this report, the Government had not made available to the committee the report of the audit conducted by KPMG. Without this information and the opportunity to analyse it the committee is not in a position to make any comment.

Funding priorities

4.22. The following suggestions were made for funding priorities for the 2000-01 budget. The committee draws these suggestions to the attention of the Government and asks that they be considered when the final budget is being prepared.

Goods and services tax (GST)

4.23. ACTCOSS drew the committee’s attention to the urgent need for a ruling from the ACT Government about the GST treatment of purchase agreements and grants for the provision of community services. ACTCOSS pointed out that if contracts are not increased by 10 per cent on existing funding levels, service providers will effectively receive a 10 per cent funding cut because they will have incurred a GST liability.15

4.24. In response to this concern the Minister for Education advised:

It presently appears that all grants and service purchase payments will be subject to GST. The ACT is yet to formally

15 Submission 12.

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decide on how these situations will be addressed, but the most likely outcome will be that DECS will pay an additional 10 per cent to the NGOs which will then forward the additional 10 per cent of GST to the Australian Taxation Office (ATO). DECS will be able to claim the 10 per cent back from the ATO as an input tax credit.16

4.25. The committee considers that this matter must be clarified urgently. The ACT community cannot sustain any further reduction in community services. Community-based service providers must be fully compensated for the GST on service purchase payments and grants.

Comment 1

4.26. The committee is of the view that it is essential that the ACT Government fully compensate community-based service providers for their GST liability on service purchase payments and grants.

4.27. Furthermore, organisations funded under service purchasing agreements and through grants will be have to pay GST on goods and services from 1 July 2000. A number of organisations pointed out that if contracts are not increased to compensate for the extra costs as a result of the GST they will face financial hardship. Many services will receive very little benefit from the removal of the wholesale sales tax on purchases as salaries and salary related costs make up the majority of their expenditure. However their costs on services they purchase will increase and they expect to have increased administration costs directly associated with the GST.

4.28. In response to this matter, the Minister advised:

As operations under the GST will be new, the impact on cost of operations is unknown. Much of the additional information required by the ATO will be generated by financial systems.17

4.29. Given that the Government has expressed an inability to assess the impact of the GST in advance, it is still unacceptable to leave community organisations in a situation where they may experience real cash flow problems. The Government has two options—to compensate organisations in advance with consequent adjustments—or to compensate them after quarterly reviews. At the very least these organisations should not be left to manage for a whole year. They cannot be expected to continually absorb additional costs.

16 Minister for Education, correspondence dated 15 March 2000. 17 ibid.

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4.30. The impact of the GST on operating costs of community-based service providers must be monitored and these organisations compensated for additional costs incurred.

Comment 2

4.31. The committee is of the view that community organisations must be compensated for increased operational costs associated with the GST

Comment 3

4.32. The committee is of the view that this compensation take the form of advance payments that are subject to adjustment.

Comment 4

4.33. The committee is of the view that following analysis of the increased costs associated with the GST in its first year of operation, in future years these additional costs be fully funded.

Teacher salaries

4.34. There is no provision in the draft budget for an increase in teacher salaries. The enterprise bargaining agreement for teachers expired in mid 1999. Negotiations on a new agreement have commenced. The Minister maintained that any increase would come out of the global budget, there is not a specific amount of funding from the Government for wage increases.18 Any increase in teacher salaries as a result of a new agreement will need to be funded following a shifting of priorities in the education budget. The committee sees this situation as a cut in funding for schools. The AEU expressed concern that as a result the educational programs and support available to schools will be further diminished.19 As mentioned earlier, teacher morale is low as a result of increasing demands and deficiencies in support from other agencies, and is being further exacerbated by uncertainty over salary levels.

4.35. This contrasts with the situation in many other states where teacher salary increases are fully funded. Without a significant salary increase for teachers, the ACT risks being placed at a competitive disadvantage in relation to recruitment.

18 Uncorrected Proof Transcript, 22 February 2000, p 12. 19 Op cit, p 13.

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4.36. The committee notes that an Australia-wide teacher shortage is predicted. An analysis of this projected shortage and its implications for quality educational outcomes in the ACT is urgently needed.

Recommendation 3

4.37. The committee recommends that the government conduct an analysis of the effect on quality educational outcomes in the ACT of the predicted teacher shortage and calls on the Government to provide the Assembly with details as to how it will manage the teacher shortage.

Social and Community Services (SACS) Award

4.38. Many services in the community have begun the staged process of translating to this award and adopting the conditions. Community organisations continue to express concerns about their ability to maintain services when faced with the additional salary costs associated with the award when they receive no additional funding.20 Employees in some Supported Accommodation Assistance Program (SAAP) services have not had a pay rise for over five years. In the 1999-2000 Commonwealth budget $45m was allocated for SAAP growth funding. This money was identified to be used ‘to ensure parity with national award increases for staff employed in SAAP agencies’.21 One SAAP service expressed disappointment that the ACT Government has made no announcement through its own budget process to accept and match the increase in funds from the Commonwealth and has made no statement regarding providing ACT SAAP services with increased funds to enable them to pay award wages.22 These services report that unless they are able to offer positions that are appropriately classified under the SACS award they will not be able to attract and retain skilled staff and continue to provide a quality service.

4.39. The Minister advised that at present the Commonwealth SAAP growth funding referred to in the previous paragraph has only been offered to some States/Territories where an award has been introduced which compulsorily covers the SAAP sector. The ACT has not to date received an offer of funds from the Commonwealth as there is currently no such award in the ACT. The Department of Education and Community Services intends to seek access to Commonwealth funding to assist with the translation to the award, as part of the bilateral negotiations for SAAP 4.23

20 Submissions 4, 8, 9, 12, Uncorrected Proof Transcript 24 February 2000, p28. 21 Senator Jocelyn Newman, media release, May 1999. 22 Submission 4. 23 Minister for Education, correspondence dated 17 March 2000.

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4.40. The committee is not convinced that the Government has a full understanding of the financial impact of the introduction of the SACS award on service providers. The committee raised this matter in its report on the 1998-99 annual and financial reports of the Department of Education and Community Services and related agencies and recommended that the Government undertake a full analysis of the impact of the award. In the absence of a response from the Government at the time of completion of this report, the committee reiterates that this be done.

Recommendation 4

4.41. The committee recommends that the Government undertake a full analysis of the impact of the SACS award on non-government service providers.

Care and Protection services

4.42. The committee’s attention was drawn to the fact that the budget for the last few years for output 6.1 care and protection services has not increased sufficiently to cover increased costs incurred by the non-government service providers. This output covers the provision of case management for children and young people in need of support, substitute care, protection and an adoption service.

4.43. The total costs and Government payment for outputs for this output for 2000-01 and the last few financial years are set out in Table 1.

Table 1 Total costs and GPO for care and protection services for 1997-98 to 2000-0124

Year Total cost GPO

1996-97 $11.270m N/a

1997-98 $10.888m $13.009m

1998-99 $12.096m $11.635m

1999-00 $12.747m (estimated) $12.588m (estimated outcome)

2000-01 $13.032m (estimated) $12.873m (target)

24 Source: Department of Education and Community Services annual reports and budget papers.

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4.44. Non-government service providers claim that their costs in the following areas have increased: salary costs due to the implementation of the SACS award; insurance including workers’ compensation; GST compliance costs; and general operating costs. One organisation reported that its workers’ compensation costs have doubled over the last five years and now amount to $80,000 per year. 25The committee was told that non-government organisations operating in this area have had increases of 1.2 to 1.8 per cent per year, and that this is not adequate to enable them to cope with the natural growth in the sector, the degree of difficulty, the increase in the rate of recidivism, and increasing numbers of clients with dual diagnosis or mental health problems.26

4.45. Another strain on this part of the budget pointed out by several organisations will result from the implementation of the Clark Report on substitute care.27 The committee understands that a number of key recommendations on fundamental changes to substitute care in the ACT arising from the report will be implemented in the next year. These include areas such as the outsourcing of departmental foster care, changes in case management between agencies, implementation of the Looking after Children Project and systems to better service young people with high support needs. There is a strong view in the community that adequate resources must be allocated for the effective implementation of these recommendations.

4.46. Care and protection services cater for some of the most disenfranchised and vulnerable members of our community. The service providers are consistently expressing concerns about their ability to meet growing needs, and to ensure their workers are properly supported and protected. The committee notes how little funding has increased over the last few years and is supportive of the above concerns. The committee expressed concern about a trend of increasing notifications of child abuse in its report on the annual and financial statements for 1998-99 for the department, released in February 2000.

Recommendation 5

4.47. The committee recommends that the Government conduct an analysis of the cost and workload increases experienced by the sector providing services related to the care and protection output.

25Uncorrected Proof Transcript, 24 February 2000, p 30. 26 Uncorrected Proof Transcript, 24 February 2000, p 30. Paper presented by Richmond Fellowship 24 February 2000. 27 Submissions 2, 12, Uncorrected Proof Transcript, 24 February p 29.

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Child Health and Development Service (CHADS)

4.48. When examining the budget papers the committee noted that the budget for CHADS has also remained fairly stable over the last few years. In fact the total costs for 2000-01 are estimated to be significantly lower than the total cost in 1998-99.

Table 2 Total costs and GPO for CHADS for 1998-99 to 2000-0128

Year Total cost GPO

1998-99 $3.925m $3.498m

1999-00 $3.876m (estimated outcome)

$3.857m (estimated outcome)

2000-01 $$3.893m (target) $3.873m (target)

4.49. CHADS will be providing additional services in 2000-01 to children with autism spectrum disorder (ASD) in the autism specific units. The cost of this additional service will be $50,000. The committee welcomes this initiative, however notes that there will be no increase in the occasions of service delivered by CHADS from 1999-00 to 2000-01. The increase in the GPO will not cover this additional cost, therefore it appears that the additional services to children with ASD will be provided at the expense of some other services.

4.50. In its report on the annual and financial statements for 1998-99 for the department, the committee noted an increase in demand for early intervention services. The information in the draft budget has the number of occasions of service for CHADS coming in on target. The committee suggests that at the time the draft budget papers were prepared it was too early to know that this would be the case. Before finalising the budget a review of the demand for early intervention services needs to be undertaken and if the trend noted earlier has continued additional resources need to be found.

Comment 5

4.51. The committee is of the view that if a review of the demand for early intervention services indicates a trend of increasing demand additional resources must be found for the 2000-01 budget.

28 Source: Department of Education and Community Services annual reports and budget papers.

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Family and community support and community development

4.52. The Belconnen Community Service, Barnardos, the Richmond Fellowship and ACTCOSS raised concerns about a lack of growth in funding for family and community support and community development.

4.53. The Minister advised that family and community support are issues of high priority in the department. The department has produced a Family Support Plan, Supporting families with children, which will be launched in late March 2000. This plan has as its first goal the need for a co-ordinated service delivery system for supporting families and sets out the priorities, which will influence future purchasing decisions for family support services. Furthermore, the family support sector has just been reviewed by an external facilitator, using a collaborative process, that involved the non-government organisations delivering the services and officers of the department. These two initiatives have given the department a better understanding about the existing services and when all the information has been analysed, resources will be used as strategically as possible.29

4.54. One concern related to the effects on services of the commencement of the Children and Young People’s Act 1999. Some additional resources have been allocated for this purpose, for example $200,000 per annum for family group conferencing, $60,000 for an Indigenous Foster Care Service and $200,000 annually for information for parents, a Parent Information Line and a web site.30 However resourcing for some other aspects of the implementation of the Act has not been identified. For example, the issue of funding of care for children and young people on temporary protection orders is creating anxiety among some community organisations. Without significant additional funding that care will not be able to be provided.

4.55. Two services reported that they have documented evidence that demand for family and community support services along with the complexity of family situations has increased significantly. Barnardos proposed the following programs:

• an outreach family support service for severely disadvantaged families with an estimated cost of $3,800 per family per year;

• extension of the mentoring/friendship programs with an estimated cost of $960 per child/young person per year;

• subsidies for day care for children aged 0-3 from disadvantaged families with an estimated cost of $1,040 per child per year; and

29 Minister for Education, correspondence dated 15 March 2000. 30 Minister for Education, correspondence dated 17 March 2000.

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• tutoring for disadvantaged children with an estimated cost of $890 per child per year.

4.56. The demand for such programs across the Territory is unknown, however Barnardos estimates that it alone has 20 families who would benefit from outreach family support, 80 children who would benefit from mentoring/friendship programs, 360 children who would benefit from subsidies for day care, and 50 children who would benefit from tutoring.

4.57. The Minister advised that programs suggested by Barnardos are well regarded by the Department and are consistent with the family support policy directions. Without being able to pre-empt an analysis currently being undertaken, the Minister reported that he would expect that Barnardos would be well placed in any exercise where there is redistribution of funds.31

4.58. The Minister further advised that the Department is interested in the continuation of the program ‘tutoring for disadvantaged children’, but the reference group to the Literacy and Numeracy Fund which makes the recommendations about successful proposals will require some evaluation of the program and some further adaptation to the Barnardos submission.32

4.59. The committee is concerned that it appears that it is only the community sector that has an understanding of present unmet need. The Government should ensure it assess not only present unmet need but future trends if it is to ensure the community is appropriately supported.

Student welfare

4.60. A number of suggestions about ways to improve how student welfare needs are addressed were made. These included:

• increasing the support staff and counselling services in schools;33

• better integrating health and community service programs with schools, especially to more effectively support homeless; sick or disabled, hungry or abused children;34

• increasing support staff for staff providing itinerant services for schools managing students with aberrant behaviour and who are at risk;35

31 Minister for Education, correspondence dated 15 March 2000. 32 Minister for Education, correspondence dated 17 March 2000. 33 Submission 6. 34 Submissions 6, 9.

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• increasing the support for high school students by establishing a third high school support centre to be located in Central Canberra;36

• providing case managers for students at risk in years 7 to 10;37

• providing community based counsellors to support students at risk in selected preschools and primary schools;38 and

• increasing the support for college students at risk of not completing year 12.39

4.61. These issues are not new. It is disappointing to note that they have been raised in a number of contexts over the last few years, including the budget context, and several inquiries conducted by the former Standing Committee on Social Policy,40 but have not been taken up, although the Minister advised that a pilot program at two northside high schools is providing additional support and case management to years 7 to 10 students through the employment of a youth worker.

4.62. It continues to be of great concern to the committee that there appears to be a significant number of students with social and emotional and behaviour problems who will be unsupported. When this matter was raised with the Minister at the public hearing he claimed this issue would be addressed by the additional funds that have been allocated to adolescent mental health in the draft budget.41 However, as the committee is aware the majority of these students will not be eligible for mental health support as they do not have a diagnosed mental illness. It is a concern to the committee that the Minister does not understand this matter.

4.63. The committee was also concerned about the issue of support for homeless children which was raised in the submission from the Council of P&Cs. The committee asked the Minister for details of the number of homeless children in the government school system and how they are supported. The Minister advised that the department does not keep central records of homeless students attending government schools. Individuals schools, however provide various measures of support, including financial assistance to homeless and other needy students, details of which are kept at the school level.42 The committee is of the view that

35 Submission 13. 36 ibid. 37 ibid. 38 ibid. 39 ibid. 40 For example, the inquiries into prevention of violence in schools, services for children at risk, mental health services in the ACT. 41 Uncorrected Proof Transcript, 22 February 2000, p 62. 42 Minister for Education, correspondence dated 15 March 2000.

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these students require co-ordinated support and in order for the Government to develop a policy direction to provide that support the Government needs to know the extent of homelessness among students.

Recommendation 6

4.64. The committee recommends that the Government work with schools and the community to determine an estimate of the number of homeless students so that it can respond with policies to support these students.

Literacy

4.65. Some sectors of the community continue to call for an expansion in the reading recovery program—a program that has had excellent results. The Minister advised that reading recovery is one of a number of effective intervention programs and that the Government supports reading recovery as an important tool to improve literacy levels of students. No mention was made of any plans to expand the Reading Recovery Program.43

Students with disabilities

4.66. The matter of resourcing for students with disabilities in mainstream schools and in autism spectrum disorders (ASD) specific units was raised in submissions.44

4.67. Resourcing for students with disabilities in mainstream schools is discussed in detail in the committee ’s report on educational services for students with a disability. The committee expects the Government will seriously consider these matters raised in the report.

4.68. The Autism Association of the ACT claimed that there is a shortage of adequate funding for students with ASD, with the result, among other things, that students with ASD will be forced into mainstream classes. The association also raised the matter of increased staff/student ratios in ASD specific units. They claim that increasing the class size from four to six in all the ASD Specific units, except North Ainslie where the class size will be increased from two to four, breaches the commitment made by the department to the recommendations 10 and 11 of the Autism Working Party. The Minister advised the committee that ASD specific classes for emerging needs will be maintained and that the department did not commit to specific staff/student ratios in ASD units.45

43 Minister for Education, correspondence dated 17 March 2000. 44 Submissions 1, 13, 14. 45 Minister for Education, responses to issues raised in submissions, 17 March 2000.

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4.69. The Association of Parents and Friends of ACT Schools (APFACTS) continues to be concerned about the level of funding available to non-government schools for students with disabilities integrated into mainstream schools and claimed that while the numbers are increasing there has been no needs assessment.46 While the committee understands many non-government schools are committed to increasing access to their schools to children with disabilities, responsibility for achieving this fundamentally lies with those schools, their systems and the Federal Government.

SAAP services

4.70. Over many years SAAP services have raised with relevant Assembly committees the issue of insufficient funding to enable them to satisfactorily meet occupational health and safety standards. In many cases drawn to the committee’s attention, the funding does not allow more than one staff member to be rostered on for most of the time. For example, most refuges are only able to roster one person for the night time shift. In some instances this shift starts at 8 pm and in others at 10 pm. In answer to a question on notice, the Minister provided details of one youth refuge where two staff are rostered from 9 am to 10 pm during week days, with one staff member on weekends and nights responsible for up to 10 residents. This single staff member is supported by another person on call in cases of emergencies. Further, the night time roster is a sleepover shift and it is expected that the staff member will sleep for some of the time.47 Another youth refuge accommodating high needs young women, which can only employ one worker for the night-time shift, reported a recent incident which could have had serious consequences for the safety of both residents and workers as a result of insufficient staff. The single staff member in this instance can have responsibility for up to eight non adult clients, some of whom have drug and alcohol and/or mental health issues.48 Another 24 hour crisis refuge which can only roster one worker at nights can have up to 22 clients.49

4.71. The fact that the funding does not allow for more than one staff member to be on roster at nights and weekends raises serious occupational health and safety issues, as well as unsatisfactory outcomes for clients.

4.72. This unacceptable situation must be addressed. While the committee recognises that there is a need for some new services it is essential that new and existing services are properly supported.

46 Uncorrected Proof Transcript, 24 February 2000, p 37. 47 Minister for Education, correspondence dated 15 March 2000. 48 Submission 17. 49 Submission 4.

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4.73. The Minister advised that it is understood that the Commonwealth will be offering the States and Territories additional growth funding on an unmatched basis for SAAP IV and this should be acceptable to the ACT.50 When the Government is considering how to spend SAAP funding it should not only be looking at new services but also how existing services are faring.

4.74. This situation also raises questions about pricing. The report on the implementation of service purchasing arrangements in the ACT deals with this matter to some extent. The report notes concerns in the community that the absence of a clear policy on outcomes will mean that economic efficiency and the lowest price might become the only significant considerations in tender decisions. The report recommends that service purchasing pricing guidelines be developed.51

Recommendation 7

4.75. The committee recommends that the Government:

• provide the committee with information on how pricing for existing services is determined; and

• when determining funding priorities for SAAP services, take into account needs of existing services as well as the introduction of new services.

Canberra Institute of Technology

4.76. The Australian Education Union (AEU) reported that the draft budget proposes further reductions in funding to the CIT, which will result in a 15 per cent reduction over three years to 2001. As a result, the CIT has been trying to do more with less every year and has been forced to:

• reduce its permanent workforce by 9 per cent in 1999;

• use casual teachers to deliver over 40 per cent of teaching hours;

• increase class sizes;

• restrict its course offerings in several areas;

• cut outreach courses for disabled students and reduce literacy ad numeracy courses for adults.

50Minister for Education, correspondence dated 15 March 2000. 51 Standing Committee on Finance and Public Administration, The report on the implementation of service purchasing arrangements in the ACT, ACT Legislative Assembly, Report Number 3, December 1999, p 14, 15.

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4.77. The AEU called on the Government to reject ‘growth through efficiencies’ and insist on a return to funded growth.

4.78. The Minister’s response provides some hope of changes. The Minister advised the committee:

Along with other states and territories the ACT has experienced a very sharp growth in demand for New Apprenticeship places in 1999. ACT is doing considerably more training for apprentices and trainees than in 1998. We expect this demand to continue into the future, although probably growth will be at a slower rate.

Over the three-year period of the current funding agreement between Commonwealth and states/territories, the level of Commonwealth funding has remained fixed at 1998 levels.

All cost[s] of additional training has been met solely by states/territories. It is time to review this arrangement. The ACT will be participating in this important national discussion to ensure that the ACT is not disadvantaged.52

4.79. The AEU also called for an immediate moratorium on contestable funding. It asserted that private providers are successfully tendering for profitable courses, often lower level certificates where numbers are high and classes can be run at maximum capacity. CIT is left to provide for continuing learners in higher level courses where numbers are smaller and larger classes cannot be formed. CIT also supports students with disabilities, students from migrant background and those needing extra support. These students are expensive to support and CIT is expected to do so without additional funding.53

4.80. The AEU also claimed that private providers often have little experience in vocational education, have inadequate curricula and equipment and employ trainers with sub-standard teaching qualifications.54

4.81. As a result, according to the AEU, the CIT is competing in an uneven playing field which has been created by competitive tendering.

4.82. The Minister’s response indicates that the Government plans to continue to encourage competitiveness. The Minister also indicated that the Government has

52 Minister for Education, correspondence dated 17 March 2000. 53 Submission 13. 54 ibid

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in place a comprehensive auditing and monitoring regime to ensure that quality training is delivered by all providers.55

4.83. The committee is most concerned about the effect of competitive tendering on the CIT and calls on the Government to undertake an analysis of the social outcomes of competitive tendering in the TAFE system and to provide the committee with detailed information on the monitoring regime applying to private providers.

Recommendation 8

4.84. The committee recommends that the Government provide the Assembly with an analysis of the social outcomes of the introduction of competitive tendering in the TAFE system including:

• detailed information on which providers are offering cost intensive courses;

• an assessment of the future need for cost intensive courses to be subsidised in the environment of contestability;

• details of funding mechanisms envisaged to support cost intensive training programs.

Recommendation 9

4.85. The committee recommends that the Government provide to the committee full details which support the statement that a comprehensive auditing and monitoring regime is in place in the TAFE system including:

• details of complaints processes, and the number of complaints made in the last year;

• details of quality assurance mechanisms in place including how monitoring of occupational health and safety occurs, and the number of visits made to providers over the last two years.

Youth services

4.86. Many of the funding issues relating to youth services have been dealt with in other parts of this report. The following also require consideration.

55 Appendix 2, number 13.10.

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• The development of a case management model for young people.

• A review of funding of youth services to take into account increased costs in the sector.

• The availability of appropriate youth housing.

• An increase in outreach support services to ensure young people with support needs who are housed in non-supported accommodation are provided the necessary assistance to ensure their housing remains secure.

• The development of a comprehensive strategy for the co-ordination and resource allocation of school and community programs for marginalised young people.

4.87. Concerns were expressed about the adequacy of funding for the establishment of the Lanyon Youth Centre. The Government advised that the centre is being funded at a base level of operation. When in operation it will be able to seek funding from other sources to provide additional programs.56

Services for men

4.88. Murringu Canberra, an independent organisation that supports men as they adjust to changing personal and community-wide circumstances, raised the need for better data about men’s issues in the ACT and the need to develop and pilot new and innovative programs for men. They suggested the establishment of a ‘Men’s Centre’ where services for men could be co-located.

4.89. The Government indicated that it intends to review men’s services in 2000-01. This review should include consideration of the issues raised by Murringu and consultation with other men’s groups.


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5. Planning issues

Assessing unmet need and cross portfolio planning 5.1. The committee would expect that the formulation of the budget would be informed by data on unmet need. In the area of family and community support, educational programs for students with disabilities and student welfare, for example, the committee was told that there is significant unmet need.

5.2. The committee requested details of unmet need in the area of family and community support from the Minister for Education in a question on notice. The Minister’s response indicates that this is an area where much work is yet to be done. As mentioned in the section on family and community support, the response included no details of any assessment of unmet need in these areas.57

5.3. Many services to the community require a coordinated cross portfolio approach. Services that come into this category are youth services, family support services, services for children and young people at risk and care and protection services. A number of submissions raised concerns about the perceived lack of cross portfolio coordination in the planning of services.

5.4. The committee raised the matter with the Minister for Education and was not satisfied from the Minister’s response that unmet need and cross portfolio issues are being addressed in a strategic manner at present.58

Recommendation 10

5.5. The committee recommends that future budgets provide information on:

• how unmet need has been assessed;

• how a cross portfolio approach to the assessment of unmet need in the provision of services that are provided to a sector by more than one portfolio has been undertaken.

57 Minister for Education, correspondence dated 15 March 2000. 58 Uncorrected Proof Transcript, 22 February 2000, p 61-63.

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6. Other significant issued raised

Non-government schools 6.1. The Association of Parents and Friends of ACT Schools (APFACTS), which represents parents of non-government schools told the committee that the budget papers were not transparent. From the papers it is not possible to determine how much the ACT Government intends to outlay for items such as recurrent funding, students with disabilities, and interest subsidies. It is also not clear what happens to money provided by the Commonwealth for example, for students at risk, discovering democracy, and the national drug strategy. A system of detailed notes would assist readers.

6.2. APFACTS questioned the reason for down grading the staff in the Non-Government Schools Office. It pointed out that non-government schools cater for 36 per of school children in the ACT. They also questioned the increase in employee expenses when the staff in the Non-Government Schools Office has been reduced.59 The Minister advised the committee that the staffing level for the Non-Government Schools Office has recently been established as two officers. This change was too late to be reported in the forward estimates for 2000-01 and an adjustment will be made in the budget to reflect this. The employee expenses also include some general overhead costs such as services to the Board of Senior Secondary Studies as well as staff salaries.60

6.3. The Catholic Education Office requested that sufficient funds be available under the Interest Subsidy Scheme to meet all requests.

6.4. The Minister advised the following.61

For the 1999-2000 financial year the total funding available for existing and new projects is $2,347, 250. Two projects for St Clare’s College were deferred into the next financial year. These projects were for bridging finance for a Library refurbishment ($168,000) and for refurbishing the Library ($165,000). For the 2000/2001 financial year total funding available is $2,405,931.

59 Uncorrected Proof Transcript, 24 February 2000, p 38. 60 Minister for Education, correspondence dated 15 March 2000. 61 ibid.

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Signature of a Deed of Grant commits Government to responsibility for interest up to 10 per cent, for the life of the loan. Loans typically run for ten to fifteen years.

The Guidelines for the operation of the scheme, provide for a priorities committee, with representation from the Catholic Education Office, the Association of Independent Schools and the Association of Parents and Friends, to be established when requests exceed provision in the fund. The task of the committee is then to recommend which projects should be given priority for available funding.

The Catholic Education Office has not provided advance notice of a request for Interest Subsidy relating to a second Catholic Primary School in Gungahlin.

Concessions and community service obligations 6.5. The ACT Council on the Ageing expressed the need for the Government to maintain its commitment to the current range of concessions and rebates. It is particularly concerned about the continued availability of rebates provided by ACTEW.

6.6. In responding to these issues the Minister advised:

The Government is committed to maintaining the existing level of concessions to all eligible recipients.

The draft Utilities Bill 2000 clearly provides for the maintenance of community service obligations – refer Part 13-Community Service Obligations. (The proposed Utilities Bill will effect all ACT Utilities including ACTEW and AGL).

ACT Education & Community Services will be holding discussions with ACTEW in March to ensure adequate processes and procedures are in place to support the new legislation as it relates to concession and community service obligations.

The Government (DOTI) is currently undertaking a review of all Community Service Obligations. The purpose of this review is to clarify definitions, identify potential gaps, look at costing methods for CSO’s and to ensure the funds are correctly targeted. A discussion paper is being prepared.

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6.7. The maintenance of community service obligations is a very important issue for older people. The committee calls on the Government to ensure that relevant community groups, including those representing older people have adequate opportunities to contribute to the proposed review.

Kerrie Tucker MLA

Chair

23 March 2000

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Appendix 1 Brief summary of issues raised in submissions

Submission 1—Autism Association of the ACT

• Concerned about the increase in class size for autism specific units. The new units will have six students compared with four in the existing units except for North Ainslie that will have four rather than two.

• Autism spectrum disorder (ASD) classes are now being pressed to take students with more profound needs than intended.

• Concerned about the needs based resourcing model.

• There is pressure on CHADS – children in need of early intervention services are missing out. There are delays in assessment for ASD, an ACT Community Care responsibility.

Submission 2—Barnardos

Additional resourcing is needed as follows:

• for the implementation of the Clark report on substitute care;

• for an outreach family support service for severely disadvantaged families—$3,800 per family per year;

• for mentoring/friendship programs—$960 per child/young person per year;

• for subsidies for day care for children aged 0-3 from disadvantaged families—$$1,040 per child per year;

• for tutoring for disadvantaged children—$890 per child per year.

Submission 3—Catholic Education Office Interest Subsidy Scheme for capital projects

• Concerned about the level of funding available for the Government’s Interest Subsidy Scheme for capital projects for non-government schools and requests

42

that the Government ensure sufficient funds are available to meet all eligible loans.

Submission 4—Toora Single Wimmin’s Shelter SAAP funding

• Asks if the ACT Government intends to accept and match the increased funds for SAAP promised by the Commonwealth.

SACS award

• Requests additional funds to meet the costs of the translation of the SACS award, so that it can maintain and recruit skilled staff and ensure OH&S requirements are satisfactorily met.

Submission 5—CARE Inc

Funding to enable the continuation of the service

• Asks for an allocation of $84,597 from the budget to enable it to continue to fund its Consumer Credit Legal Service. The service was previously funded from the Financial Counselling Trust Fund, which will not have substantial sums coming to it in the future because of a change in the legislation. The submission states that Minister for Education suggested that they pursue funding through the budget process.

Submission 6—ACT Council of Parents and Citizens Associations Inc Decline in real expenditure

• Claims there has been a decline in real expenditure on government schools because the Government has withdrawn funds from the government school budget each year since 1997-98 as an efficiency dividend and that indexation for inflation is applied to a schools expenditure estimate that is less than total Government expenditure on schools.

• Calls for an independent audit of funding to government schools.

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Drop out rate in senior secondary schools

• There is a significant drop out rate in senior secondary schools. A significant proportion of students in ACT government schools is not achieving the goal of completing year 12.

At risk students

• There is increasing concern about the welfare of some students — particularly in secondary schools.

Funding priorities

• Expand supplementary programs in the early years of schooling and across all school sectors. (reading recovery and other supplementary learning assistance programs)

• Extend training for teachers to provide literacy and numeracy learning assistance.

• Introduce a system-wide program to support parent involvement in the literacy and numeracy learning of their children.

• Increase student welfare support staff in schools and extend collaboration between schools and welfare services.

Submission 7—Audrey Guy

• Claims the department is spending large amounts on administration and non school-based support for literacy.

• Asks why the department is increasing GPO by 2 per cent in the Government sector and 5 per cent in the non-government sector.

Submission 8—Belconnen Community Service Effect of GST on Government grants

Concerned about the effect of the GST on their operations and asks whether this will be factored into grants. Most of their expenditure is salary related and they

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expect to receive very little benefit from the removal of the wholesale tax, however their costs will go up.

Submission 9—Youth Coalition of the ACT

This submission covers all portfolio areas. Matters to do with the budget

• The need for a cross portfolio approach to youth issues

• The need for an ACT youth strategy for 1999-00

• Confusion in the community about the budget consultation process

• Funding sources cannot be identified by the community for all community suggestions.

Youth sector development

• There have been increasing demands on the sector with no increase in funding.

• Additional costs associated with implementation of the SACS Award must be funded by Government.

• Funding for training is needed in the sector.

• Funding to allow for additional costs associated with the GST is needed.

Education and training matters

The submission recommends that:

• the Government resource a review of government school-based and community-based programs for marginalised young people in the education system and develop a strategy for the coordination of existing programs and future resource allocation;

• independent living skills are taught as a core component of curriculum from primary school to secondary aged students by youth workers;

• the ACT Government commit to the continued funding of the Full Service Schools Unit;

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• literacy programs be made available to young people accessing ACT Colleges;

• the Work to High School program currently in operation at Stromlo High

School be extended to other ACT high schools to cater for the diverse talents

and aptitudes of young people in the ACT.

Submission 10—Council on the Ageing (ACT)

This submission covers most portfolio areas.

In relation to the Education portfolio the submission calls for maintenance of the commitment to concessions and community service obligations.

Submission 11—Murringu Canberra Ltd

The submission proposes that men’s services be co-located (not combined to form a single service) to develop a ‘Men’s Centre’ where a range of services and support for men can be found.

Submission 12—ACTCOSS

General issues

• Is critical of the process, particularly the short time frame and being restricted to commenting on single portfolios.

• None of the key result areas relate to the achievement of social outcomes.

• Questions whether the increase of $8m for schools in 2000-01 represents a significant real increase in the financial commitment from the ACT Government.

• There appears to be no allocation for an increase in teacher salaries expected as a result of the EBA negotiations.

Support services for families at risk

• Calls for increased resourcing to implement the Clark report on substitute care and the provisions of the Children and Young People’s Act 1999.

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Addressing unmet need for community services

• Over the last five years funding has not been increased in real terms to match demand. At the same time the sector has had to respond to increased costs with the SACS award and soon the GST.

Impact of the GST on the community services sector

• A policy decision needs to be made on the treatment of purchase agreements and grants. ACTCOSS recommends that all grants and purchase agreements be increased by 10 per cent.

New apprenticeships and traineeships

• It appears that no additional ACT funds have been allocated for these programs. Suggests that the committee seek further information about the funding mix.

Lanyon Youth Centre

• ACTCOSS is concerned that that funding ($332,000 over four years) will be insufficient to offer a comprehensive service to young people in this remote and growing part of the Territory.

Consumer protection mechanisms review

• Recommends that significant resources be allocated for a fully independent cross-government review of consumer protection mechanisms.

Submission 13—Australian Education Union

Teachers

• There is a critical need to address the issue of the status of teachers.

• The draft budget contains no provision for an increase in teachers’ salaries despite the expiration of the Enterprise Bargaining Agreement.

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Issues of quality in ACT government education

• Proposes the following initiatives (also proposed but not acted on in the 1999-00 budget)

• Case managers for students at risk in years 7 to 10.

• Community based counsellors to support students at risk in selected preschools and primary schools.

• An increase in resources to support the integration of students with disabilities in mainstream classrooms.

• The establishment of a third high school support centre to be located in central Canberra.

• An increase in support for staff providing itinerant services for schools managing students with aberrant behaviour and at risk.

• An increase in support for college age students at risk of not completing year 12.

• A reduction in class size in Year 1 of primary school and the development of a proposal to reduce class size in Year 2.

TAFE sector

• The draft budget proposes further reductions in funding to the CIT, which will result in a 15 per cent reduction over three years to 2001.

• As a result the CIT has been trying to do more with less every year and has been forced to:

• reduce its permanent workforce by 9 per cent in 1999;

• use casual teachers to deliver over 40 per cent of teaching hours;

• increase class sizes;

• restrict its course offerings in several areas;

• cut outreach courses for disabled students and reduce literacy ad numeracy courses for adults.

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Submission 14—Autism Association of the ACT (supplementary)

There is a shortage of funds allocated in the budget to meet the needs of students with autism spectrum disorders (ASD).

• A lack of funds has forced the Department of Education and Community Services to adopt the Victorian funding model.

• There has been no forward planning in the budget for increased numbers of students with ASD.

• CHADS quantity measures do not identify the number of children registered but not given a place.

• The integration and co-ordination of services especially between Education and Health needs to be developed.

Submission 15—Volunteering ACT

This submission was also provided to the Standing Committee on Finance and Public Administration as it covers a number of territory-wide matters as well as some matters directly relating to that committee’s responsibilities. It raises the following matters related to the responsibilities of the Standing Committee on Education, Community Services and Recreation.

• Expresses concern that the audit of community facilities promised in the last budget has not been scheduled.

• Proposes that consideration be given to the introduction of the School and Community Involvement Program which has operated successfully in NSW and Western Australia.

• Questions whether the amount allocated for the establishment of Lanyon Youth Centre is adequate.

• Expresses concern that the Young People’s Sport and Recreation Program has been suspended.

Submission 16—ACT Council of P&Cs Inc (supplementary)

This submission provides further information relating to the claim that the Government has not fulfilled its commitment to maintain funding for Government Schools in real terms.

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• It points out differences in interpretation of terminology for example ‘total funding’, ‘per student expenditure’, ‘efficiency dividend’.

• It reiterates that the Government’s commitment to maintain funding in real terms was not qualified.

• It questions the validity of the concept of comparative pricing of outputs and suggests that the process is designed to reduce expenditure to an adjusted average rather than maintain funding standards for schools.

Submission 17—Lowana Young Women’s Service

• Expresses concerns about funding of youth accommodation services.

• Funding only allows for one worker to be on duty for the night time shift which raises serious occupational health and safety issues, particularly in 24 hour services dealing with high-needs clients.

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Appendix 2 Government response to issues raised in submissions

Number Organisation Issue Response

1.1 Autism Association of the ACT

Shortage of adequate funding (ASD)

The department funds a range of services for children with autism including: • Social Awareness and Communication playgroup – capacity 12 children • Hughes Autism Unit – capacity 16 –24 children depending severity of the disability

for each child • Therapy teams to the new autism units in primary schools. • Individual therapy to children with autism in mainstream school settings. • Early intervention services • Supported inclusion in mainstream schools • Autism Specific Learning Support Units (LSUs) in 5 primary schools and 1 high

school • Special Needs Units (not Autism Specific) in 2 Senior Secondary Colleges • Learning Support Centres (not Autism Specific) in mainstream schools • Special Schools

An additional $50,000 is being allocated to assist with the expansion of CHADS services due to opening of new primary school units.


Commitment to Teacher/student ratio not implemented

Recommendations 10 and 11of the Autism Working Party Report 1998 refer to staff / student ratios. Department’s response to these recommendations did not commit to specific staff/student ratios.

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Fear that a lack of special settings will result in more children being placed in mainstream classes

ASD classes for ASD students with emerging needs will be maintained.


Pressure on CHADS services and staff

CHADS reorganised services in late 1999 to allow the Hughes autism unit to accommodate within existing resources 16 – 24 children with autism instead of 12 children for the 2000 school year. This reorganisation involved changes to class times to enable more efficient use of current facilities across the week and implementation of one additional class.

The new multidisciplinary service model for children with autism was implemented in to the new primary school units. These two measures have substantially increased services for this client group within existing resources.

Diagnostic assessments have traditionally been the responsibility of Child and Adolescent Mental Health Services (CAMHS). CHADS, CAHMS and the Child, Youth and Women’s Health Program are currently collaborating on development of an interagency multidisciplinary assessment program.

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2.1 Barnardos Australia Effective and adequately resourced implementation of the Clark Report

The recommendations of the Clark Report for substitute care are being implemented in a process involving consultation with the substitute care agencies and foster carers.

As part of the reform process, Family Services, in consultation with the agencies, is conducting a study to benchmark prices for foster care. This will result in consistent pricing across agencies for similar types of foster care, but without reduction in the overall funding.

Family Services is researching approaches taken in foster care pricing in all states, NT and NZ. A benchmarked framework for pricing will be developed for purchasing foster care for children and young people with a range of support needs. The framework will be developed in consultation with the substitute care agencies.

2.2 Barnardos Australia Additional outreach Family Support for severely disadvantaged families

The Special Neighbours Program is funded $42,497 through the Community Services Grants Program to provide outreach support to disadvantaged families. The value of this program is recognised and the funding will be maintained in 2000 – 2001.

Prevention of child abuse and neglect is high on the agenda with the Parentlink and Parentline soon to be launched. Community Services Grants Program has family support as its priority and will be closely monitoring the demand for services supporting the new Parentline.

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2.3 Barnardos Australia More funding for mentoring/friendship program

The Kid’s Friendship Program is funded $24,000 through Community Services Grants Program and will be maintained in 2000-01. The funding level was increased by 25% in 1999/00. The department considers that the Kids Friends, a friendship/mentoring program is extremely valuable for supporting children and young people.

.

2.4 Barnardos Australia Increase in subsidies for day care for 0 to 3 year olds

The ACT Government supports the important role of child care in the lives of young children. For this reason the Government commits around $1.2M to occasional care services across Canberra or around $3 225 per place. The occasional care services provide support to families and stimulating experiences for young children.

ACT funded Occasional Care services are also required to offer fee relief to occasional users on a needs basis to assist with affordability. The fee relief is targeted towards non work related care for family support.

In addition the Commonwealth government has the capacity to assist families for up to 26 weeks through special child care assistance. This support is available where a family meets specified eligibility criteria. These include situations where a child is deemed to be at risk and/or the family is facing significant hardships including death, separation, loss of employment.

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2.5 Barnardos Australia Continuation of tutoring for disadvantaged children

S10,000 will be allocated for the Barnardos Homework Clubs during 2000 from the Literacy and Numeracy Fund (this fund was announced in the 1996 Budget and generates $90,000 each year).

3.1 Catholic Education Office

Increase in per capita grants for non-government schools

CEO acknowledges draft Budget continues the four year commitment to increase per capita grants by $0.4m each year for four years. This increase is in addition to annual indexation.


Increase per capita grants for eligible special needs students

CEO acknowledges that draft Budget continues the four year commitment to increase grants for special needs students by $0.1m each year for four years. This increase is in addition to annual indexation.


Ensure sufficient funding under Interest Subsidy Scheme

Prior to 1995/96 the Interest Subsidy Scheme was capped at $2m. In the 95/96 budget an additional $100,000 was provided and revised guidelines approved. 2000/2001 financial year $2.4m available.

4.1 Toora Single Wimmins Shelter

Acceptance of the offer of additional SAAP funds from the Commonwealth

It is understood that the Commonwealth will be offering the states and territories additional growth funding on an unmatched basis for SAAP IV. This should be acceptable to the ACT.

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4.2 Toora Single Wimmins Shelter

Additional funds for SACS Award to be passed on to services

The Commonwealth funding referred by Toora has only been offered to some States/Territories where an award has been introduced which compulsorily covers the SAAP sector. The ACT has not to date received an offer of funds from the Commonwealth, as there is currently no such award in the ACT.

The Department of Education and Community Services intends to seek access to Commonwealth funding to assist with the costs of award translation, as part of the bilateral negotiations for

SAAP 4.

5.1 Care Financial Counselling and Consumer Credit

$84,597 needed to retain consumer credit legal service

Responsibility for funding of this service rests with JACS. JACS has advised that they are unable to comment on this matter at this stage in the budget cycle.

6.1 ACT Council of P&C Associations

Breach in commitment to maintain expenditure on government schools in real terms

Separate response has been provided to the Committee. The result of an independent audit will also be provided to the Committee when it is available.

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Significant proportion of students not achieving expected levels of literacy and numeracy

The results of the 1999 ACT Assessment Program indicate that student performances in literacy and numeracy are improving and remain at high levels. The results of the national benchmark process showed ACT at a very high level nationally.

The focus on professional development programs for teachers announced in the ACT Literacy Strategy (1998) will continue through a range of offerings in 2000. These include specific training programs in literacy and numeracy for primary and secondary teachers, schools sharing their expertise through the Professional Development Schools initiative and through English as a Second Language (ESL), Learning Assistance and Kindergarten teacher networks. Six teachers will also be funded this year to obtain formal qualifications as Learning Assistance teachers through the University of Canberra. School Literacy Plans and results from the ACT Assessment Program will be used by schools to inform planning and targeting of students in need.


Number of students not obtaining year 12 certificate

In February 1998 there were 3331 year 11 students in government schools. By August 1999 there were 2937 students in year 12 and 2793 received a Year 12 Certificate. 824 students were issued with a Secondary College Record indicating non completion of a year 12 Certificate. Many of these students would have transferred interstate or to CIT.

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Increasing student welfare problems in schools

Each high school is allocated 10 staffing points for Pastoral Care, which is added to their site component. Ongoing support to all schools is provided in the form of itinerant behaviour management consultants and Youth Connection referrals. Specific support is provided to high schools and colleges by the Full Service Schools Unit and the High School Support Centres. Projects addressing student welfare problems in high schools are currently underway in the Affirming the High School Years project.


Expansion of reading recovery program to all primary schools

The government has continued to allocate an additional $400,000 in 2000 to primary schools to support early intervention programs including Reading Recovery. This funding will be used to train 5 new Reading Recovery teachers, to provide 61 schools with extra resources for the provision of early intervention programs, including Reading Recovery and also to provide professional development for P-2 teachers in schools through the appointment of three field officers (two Early Literacy Officers and a Reading Recovery/Learning Support Tutor). The government supports Reading Recovery as an important tool to improve literacy levels of students.


Support for parent involvement in literacy and numeracy learning

Parent involvement in literacy and numeracy learning has been the focus of the Supportive Practices to Enhance Literacy Learning (SPELL) project focusing on Home-School Communication, Homework and Integrating Home-School Literacy and Numeracy Practices. This project will continue during 2000. Never Miss A Chance parent program is being piloted with parents of children from 0-6 years of age. The Talk to a Literacy Learner (TTALL) program will also be piloted in primary and secondary schools in 2000.

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7.1 Audrey Guy Blow out in administrative costs

• Increase during 1999-00 budget for administrative costs mainly due to a cost reallocation, mostly from grants costs.

• Teacher’s salaries increase for 1999-00 was 1.5% and not 1%. In addition, teachers progress automatically through a salary increment range. Includes cost increase for non-teaching staff eg for administrative staff and janitors. Also includes additional accrual for salaries.

• Total GPO and OI increased by 2.4% for Government Schooling and 4% for Non-Government Schooling.

7.2 Audrey Guy Effectiveness of numeracy and literacy programs to be demonstrated

The Literacy and Numeracy Team was established in 1998 to provide literacy and numeracy support to schools. The Team includes field officers who do support teachers and school communities. For example in 1999 all high school and primary school teachers were trained in the First Steps literacy materials through a train the trainer model led by members of the Team.

Accountability is monitored through teacher evaluation of programs which has been very positive and by the numbers who take up the professional development offered by the Team. The expansion of the ACT Assessment Program to include Years 7 and 9 as well as years 3 and 5 will also be used to provide more accountability and monitor the effectiveness of literacy and numeracy programs.

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8.1 Belconnen Community Service

Growth funding needed for individual, family and community support and community development (CSG categories)

The services purchased from the Community Services Grants Program have received indexation each year. In addition, the positive parenting program, Parentlink and Parentline, represents an additional $200,000 recurrent funding from the ACT Government and an additional $100,000 for at least 2 years from the NRMA. An additional $100,000 per annum was also provided for the Men’s Crisis Accommodation Service in the 1998/99 budget cycle.


Need for additional resources in community services sector

The community services sector has like other sectors been required to absorb many new cost demands through efficiencies and improved targeting of their services. Indexation has been passed on to these services


Impact of GST on community services sector

Government is presently considering the issue of the most appropriate treatment for GST applicable to grants.

9.1 Youth Coalition of the ACT

Need for a coordinated cross portfolio response to youth needs/data collection/data base of services

• Discussions are taking place with the Chief Minister’s Department to improve the cross portfolio coordination of youth issues.

• Youth forums are held twice a year to coordinate youth services for the ACT and examine youth needs.

• Development of a comprehensive Youth Website will enhance communication and access to data.

• SAAP Youth Services Review is looking at improved data collection as well as service outputs and outcomes.

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Resource the development of a case management model for young people

• Office of Youth is actively working within Government and non-government sectors to build consistency and comprehensiveness of case management. Collaboration with other programs is a key issue, which will gain momentum in the implementation of SAAP IV.

• First steps have been taken towards the development of coordinated data system, which currently links Youth Connection and Adolescent Day Unit.

• Schools have the flexibility within their structure to provide case management. Year coordinators and members of the welfare team often perform this role. A pilot project is underway on the northside. A youth worker is providing additional support in two northside high schools.


Resourcing should be adequate for 2% funding to be guarantied for training

• Funding is provided to organisations for a range of services, one of which is staff training.

• SAAP provides additional training annually at no cost to the organisations.


Benchmarking of costs for services needed in staffing and operation areas

Review of SAAP Youth Services and other community services currently underway to examine this issue.

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Funding to youth services should reflect increased costs

• Indexation is provided to services yearly which is usually calculated at CPI level or above.

• A costing and pricing exercise, specifically targeting SAAP services but with broader applicability to community services in general, will be conducted later this year as part of the implementation of service purchasing.


RPL and accreditation needed for workers in youth sector

All Registered Training Organisations are required to offer Recognition of Prior Learning to ensure existing workers without qualifications have their current competencies certified.

Recognition of Prior Learning can be an effective way of reducing training costs for existing workers.

The Community Services Training Package further gives opportunity to reduce training costs because the need for accreditation of courses is removed.

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Commonwealth SAAP funds should be quarantined for SACS Award

The Commonwealth funding referred to has only been offered to some States/Territories where an award has been introduced which compulsorily covers the SAAP sector. The ACT has not to date received an offer of funds from the Commonwealth, as there is currently no such award in the ACT. The SACS Award currently has a clause that excludes SAAP as a sector from being covered under this Award.

The Department of Education and Community Services intends to seek access to Commonwealth funding to assist with the costs of award translation, as part of the bilateral negotiations for

SAAP 4.


Need for Indigenous and NESB workers integrated to be into youth services

Indigenous staff are employed in both Family Services and Youth Connection. It is expected that the department’s Indigenous Services Plan, currently in preparation, will examine ways to encourage community-based services to employ Indigenous workers.


Evaluation needed for Pathways to Employment Program

These processes already exist. Current contracts require reporting on outcomes and payment is outcomes-based.

OTAE is now implementing a Performance Review Process which consolidates reporting, monitoring and auditing to ensure quality outcomes.

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Identification of indigenous job opportunities in lead up to Olympic Games

The ACT Government is supportive of Indigenous job opportunities in the lead up to the Olympic Games.


Funding needed to provide enterprise skill training to unemployed youth

Several organisations providing services to youth are already Registered Training Organisations and can access public funding. These include:

1. Southside Community Services

2. Tuggeranong Community Services

3. Community Education and Training (formerly Community Youth Sector Training Council)

4. YMCA

The ACT Accreditation and Registration Council provides support to organisations to become Registered Training Organisations.


Appropriate youth housing needed but not at the expense of public housing over community housing.

The Government has recognised the importance of youth housing issues and Dept of Urban Services has established a consultative Youth Housing Taskforce to progress these issues to develop the Youth Accommodation Strategy. Options for consideration include boarding houses and the extension of the single-share accommodation scheme.


Increased outreach needed for young people with support needs

This will be investigated under SAAP IV and trialed in some Youth Centres. The Youth Centre in Civic is already using this model.

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DUS to identify and report on strategies for providing appropriate housing for young people

• The Department of Urban Services has set up a Task Force to look at these issues, and options will be put forward in the Youth Accommodation Strategy due for release in the first half of this calendar year.


Develop a comprehensive strategy for the coordination and resource allocation of school and community programs for marginalised young people

The importance of coordination and resource allocation for marginalised young people is recognised by the department and is being addressed by a cross department working group.

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Independent Living Skills to become part of core curriculum

The Full Service Schools Unit is staffed with specialist teachers and youth workers trained to meet the needs of students for independent living skills.

Throughout the compulsory years of schooling, students undertake many subjects and activities that promote independent living skills. The ACT’s Health and PE framework outlines for students units in consumer awareness, making healthy food choices, understanding community and cultural aspects of nutrition.

Students are also being well prepared for the world of work. The department oversees the implementation of career education and work experience courses in the high school years. In the post compulsory years students are undertaking a broad range of vocational education and training courses designed to enhance key competencies.


Continued funding needed for Full Service Schools Unit

A priority for the Full Service Schools Program in 2000 is to develop system and school-based initiatives which will be sustainable beyond the period of Commonwealth funding.

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Literacy programs made available in ACT colleges

Literacy and numeracy programs are offered in ACT colleges through accredited and registered units across the curriculum. Specialist programs which focus on literacy and numeracy such as the Students at Risk (STAR) program at Copland College, the Alternative Education program at Canberra College and focus programs at Dickson and Lake Ginninderra Colleges are also offered in many colleges. The department is currently engaged in a project to identify the minimum literacy and numeracy standards required in National Training Packages. This work will help to develop curriculum support for teachers of years 9 to 12 students.


Extension of Stromlo Work to High School Program

Understand that this issue refers to Lanyon High School’s ACCESS program funded by the Australian Student Traineeship Foundation. Under the ‘High School to College Vocational Pathways Pilot Project’, all mainstream high schools are now operating similar models. The Youth Coalition approves of the ACCESS program because it gives 180 young people an opportunity to mix their core school work with extended work experience, part-time work or vocational training opportunities).


Training required for SAAP service workers

The Department provides a program of training each year for SAAP services. In 1999, two of the areas covered were mental health – suicide intervention and dual diagnosis. Further training in mental health issues will be provided during 2000.


Accommodation options needed for young people with mental health problems

There is a protocol between ACT Housing and Mental Health Services for dealing with clients with mental health problems. ACT Housing provides some accommodation to community organisations supporting clients with mental health issues.

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Concern about the standard of drug education programs in schools

The recent release of the Drug Education Framework for ACT government schools has provided significant direction and support for educators who are developing effective programs.

The quality of drug education teaching in the ACT continues to be supported by our system’s active involvement in national drug initiatives.

The Department is committed to a three year funding of the Drug Education Project for the ACT school community.

Drug Education is an essential part of any Health & PE curriculum and as such is does have a mandated place in school programs.


Support needed for young people exiting Quamby

A model and resources for a new Indigenous service to meet this need, is currently being developed in conjunction with the Commonwealth.

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Resourcing and Support needed for alternative sentencing options

Youth Justice Services has an important role in coordinating community resources and sentencing options.

Corrective services has begun an audit of the Youth Justice offender profile and the services and programs that are currently being delivered to young offenders.

Over 90% of Youth Justice clients had community based sentences imposed during 1999 by the Children’s Court.

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Resources needed for crime prevention

The Department of Justice and Community Services advises that there are adequate resources allocated to crime prevention initiatives directed at reducing the numbers of young people in custody. Examples of such programs include:

Juvenile Justice Services recently appointed two liaison officers, with one of their main functions relating to working with indigenous youth. The Aboriginal Justice Advisory Council has recently been established. The AFP Aboriginal Liaison Officer will be proactively involved with the ATSI community, as well as respond reactively to critical incidents that may occur. Police Citizen Youth Clubs focus on at-risk young people as well as their mainstream clientele. Project Saul (AFP) has conducted outdoor experiences for Aboriginal youth. Woden Community Services are currently funded by DECS to administer an Aboriginal outreach program targeting at risk youth. The ACT is considering ways in which it may implement recommendations flowing from National Crime Prevention’s (Commonwealth Attorney-General’s Department) Pathways to Prevention study, which addressed early intervention as a crime prevention tool. The challenge is to evaluate these programs so that the Government is able to identify those elements which prove effective, so that it may better target services.


Ongoing evaluation needed for youth justice services

• ACT Youth Justice is participating in the process to develop standards in relation to best practice in this area.

• Juvenile detention facilities will undergo regular external assessments by panels comprising of independent experts, using the Australasian standards as a basis of assessment.

• The Official Visitor and the Community Advocate further monitor Quamby on a regular basis to ensure ongoing evaluation is achieved.

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10.1 Council on the Ageing

Maintenance of the commitment to concessions and CSOs

• The Government is committed to maintaining the existing level of concessions to all eligible recipients.

• The draft Utilities Bill 2000 clearly provides for the maintenance of community service obligations – refer Part 13-Community Service Obligations. (The proposed Utilities Bill will effect all ACT Utilities including ACTEW and AGL).

• ACT Education & Community Services will be holding discussions with ACTEW in March to ensure adequate processes and procedures are in place to support the new legislation as it relates to concession and community service obligations.

• The Government (DOTI) is currently undertaking a review of all Community Service Obligations. The purpose of this review is to clarify definitions, identify potential gaps, look at costing methods for CSO’s and to ensure the funds are correctly targeted. A discussion paper is being prepared.

11.1 Murringu Canberra Need for more knowledge and data about men’s services

There is some evidence of a lack of support options for men, however, more data is required. DECS intends reviewing men’s services in the 2000/01 financial year to inform future service purchasing directions.

11.2 Murringu Canberra Co-location of men’s services

As part of the review of men’s services, referred to previously, the issue of co-location of men’s services will be addressed.

12.1 ACTCOSS Funding increases for education portfolio

Government has met its commitment to maintain funding for Government Schooling in real terms.

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12.2 ACTCOSS Support services for families at risk – resources related to the introduction of the new Children’s and Young People Act and the implementation of the Clark Report.

Additional resourcing for the Children and Young People Act 1999

Family group conferencing - $200,000 annually.

Measures for Indigenous children - $60,000 annually for an Indigenous Foster Care Service provided through Open Family.

Indigenous staff provided in Family Services and Youth Connection.

Parent Support - $200,000 annually for information for parents, a Parent Information Line and web site for parents.

Implementation of the Clark Report on Substitute Care

Implementation of the Looking After Children Program.

Roles and responsibilities of carers, foster care agencies and Family Services to be clarified.

Benchmarking study of pricing for foster care.

New system of foster care; 2 agencies to provide care for children 0-10 (Marymead and Barnardos), and 2 agencies to provide care for young people 11-17 (Galilee and Open Family).

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12.3 ACTCOSS Addressing unmet need for community services including lack of appropriate, accessible and affordable accommodation.

There will always be unmet demand for social services and with the introduction of service purchasing, the department is becoming more skilled in prioritising needs. The community services sector has like other sectors, been required to absorb many new cost demands through efficiencies and improved targeting of their services. Indexation has been passed on to funded services.

The building conditions audit of community facilities is scheduled as part of the Department’s Asset Management Plan for 2000/01 and is expected to commence August 2000. The audit will provide information on the overall condition of the community facilities thus enabling more informed decisions about relative priorities of works required.

All community facilities have continued to be maintained throughout the year with budget allocations being broadly consistent to that of previous years.

12.4 ACTCOSS Impact of the GST on the Community Services sector

The Commonwealth Government has provided $500m for the provision of support to the non-Government sector for implementation of GST.

The department is encouraging its funded services to avail themselves to the start-up training being provided by ACTCOSS, and is passing on information as it becomes available from the Australian Tax Office.

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12.5 ACTCOSS Apprenticeships and traineeship

-information on funding mix for New Apps

- provision of additional Commonwealth funds – effect of transfer of funds from Pathways to Employment Program

In 2000/01 an additional $0.5 million is required to fund anticipated growth in New Apprenticeships. This additional funding will be achieved by redirection of $0.3 million GPO presently paid to Chief Minister’s Department and redirection of $0.2 million from the Pathways to Employment program.

Commonwealth recurrent funding for VET through ANTA for 2000 is $13,538,079. Funding in 1999 was $13,312,000. The increase represents $226,000 indexation, which is already included in the budget.

The effect of transfer of funds from the Pathways to Employment program is offset through a significant increase in training hours for the Industry Training Program and the Adult English Language Literacy and Numeracy Program as well as the introduction of a new program in 2000, the New Apprenticeship Access Program.

• The Pathways to Employment Programs focused on the needs of groups disadvantaged in the labour market. In 2000 training directed at these groups is expected to increase by around 13%.

12.6 ACTCOSS Monitoring needed for therapy services for primary school autism units to assess whether need is met

See 1.1 and 1.4. CHADS will evaluate the effectiveness of the new service delivery model in Term 4 2000.

12.7 ACTCOSS Lanyon Youth Centre - Call for a review of funding levels for youth centres to ensure adequacy.

Lanyon Youth Centre is being funded at a base level of operation. When in operation it will be able to seek funding from other sources to provide additional programs.

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12.8 ACTCOSS Need for a cross government review of Consumer Protection mechanisms

DECS has consulted with JACS who advise that their Department administers 22 Acts which have as their central purpose consumer protection mechanisms, together with a series of codes of practice to protect consumers.

There are also a number of Commonwealth consumer protection laws, which are applicable in state and territory jurisdictions, including the Trade Practices Act. In addition to disputes mechanisms clauses within contracts between government agencies and community organisations, if a decision of a government agency falls within the definition of “administrative decision”, appeals may also lie to the AAT for merits review, or to the Supreme Court for judicial review.

Under the Competition Principles Agreement to which all Australian jurisdictions are signatories, governments are required to review regulatory legislation with a view to testing such regulation against public benefit guidelines.

One current example of this is that a discussion paper about a review of regulation affecting the legal profession in the ACT was recently circulated widely for comment. The paper proposes increased consumer protection mechanisms and greater transparency and accountability in the regulation of the legal profession.

Within the service-purchasing environment, there are a number of consumer protection mechanisms relating to both funded community organisation and their clients. These include:

• ACT Government written policies and guidelines on purchasing, managing a contract, etc.

• Clauses within the Service Purchasing Agreement covering client feedback and complaints mechanisms, processes to resolve disputes between the provider and the funder and a requirement that the provider conform with relevant Territory and/or national standards

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12.9 ACTCOSS Demonstrate effectiveness of User Choice

User Choice was introduced from 1 January 1998 for all trainees and apprentices (except NSW). The ANTA Ministerial Council has ensured national evaluation of User Choice.

The consultant’s report on Phase 2 of the National Evaluation of User Choice concluded that “The policy framework is strong, progressing well at the current time and the policy should stand as it is.”

The report also noted “There are some potential ‘hotspots’ which do not warrant any attention at this stage but should be monitored. OTAE has ensured that this monitoring is taking place.

1998-99 DECS Annual Report Output Class 3 VET Services indicates 75% of employers are satisfied with their employees training under New Apprenticeships and 79% of New Apprentices are satisfied with their training under New Apprenticeships. These results compare well with the national average of 67%.

13.1 Australian Education Union

No provision for increases in teacher’s salaries

The Government has met its commitment to maintain funding for Government Schooling in real terms. EBA negotiations take account of, amongst other factors, the broad budget position.

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Ongoing provision of a teacher renewal program is a waste of a further $600k

The Teacher Renewal Program (TRP) is a workforce planning strategy to ensure the skill mix of teachers will meet the future needs of students. The TRP gives Teacher Level 1s promotional opportunities as well as increasing beginning teacher recruitment by 20 each year the program operates.

Colleges have made appropriate adjustments for the new staffing arrangement.


Case managers needed for students at risk in years 7-10

Schools have the flexibility within their structure to provide case management. Year coordinators and members of the welfare team often perform this role. A pilot project is underway on the northside. A youth worker is providing additional support in two northside high schools.


Previous call for community based counsellors for students at risk in preschool and primary not addressed

AEU has previously raised this issue. During 1999 a review of support to students with special needs in Government preschools was conducted. The review considered there is a range of support available to children with special needs in Government preschools. The preschool system is making progress towards providing an inclusive preschool program in the ACT. Improvements in the areas of communication with parents, linkages between preschools and improved data collection systems will enable better use of resources available. A working group has been convened to implement recommendations of the reviews. Work has commenced on identifying improved ways for preschools, Early Childhood Services and CHADS to work together to identify and support students with special needs.

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Increased resources needed for integration of students with disabilities

The Integration Support Unit coordinates integration. It may include consultancy with the class teacher and the whole school, provision of teacher days to access professional development, and an allocation of STA support. The level of STA support is determined by a Preview Panel and is based on the needs of the student within the school setting.


Additional High School Support Centre needed in central Canberra

Funding for the two High School Support Centres is committed to the end of 2000. A part time teacher funded through the Office of Youth is currently providing a program for Years 10, 11 and 12 at Civic Youth Centre.


Increased support for staff in itinerant services for managing at risk students

Current resource levels have been maintained. The itinerant teachers have access to professional development activities aimed at developing their expertise. They participate in regular consultative meetings with supervisory staff and have the opportunity for debriefing sessions.


Need for increased support for college aged students at risk of not completing year 12

Through the Full Service Schools Program, the Department of Education and Community Services is attempting to encourage sustainable changes in secondary colleges aimed at providing more flexible services to the young people in this category.


Reduction in class sizes years 1 & 2 would enhance student outcomes

Schools have the flexibility to organise staffing in order to achieve reduced class sizes.

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Number

13.10

Organisation

Australian Education Union

Issue

Cut in CIT funding and preservation of a quality TAFE institution

Response

Conclusion 1: ACT to reject “growth through efficiencies” and insist on a return to (Commonwealth) funded growth.

Along with other states and territories the ACT has experienced a very sharp growth in demand for New Apprenticeship places in 1999. ACT is doing considerably more training for apprentices and trainees than in 1998. We expect this demand to continue into the future, although probably growth will be at a slower rate.

Over the three-year period of the current funding agreement between Commonwealth and states/territories, the level of Commonwealth funding has remained fixed at 1998 levels.

All cost of additional training has been met solely by states/territories. It is time to review this arrangement. The ACT will be participating in this important national discussion to ensure that the ACT is not disadvantaged.

Conclusion 2: An immediate moratorium on contestable funding

The ACT over the past three years has carefully introduced a small degree of competitiveness into the training market.

A small proportion of training funds is contestable. In line with agreed national policy all New Apprenticeship funding in the ACT is contestable. The Report on Government Services 2000, Vol 1, Page 194, shows that 5% of ACT VET funding goes to non-TAFE entities (compared with 6.1 for Australia). CIT is a strong player in the market and wins the business, for example, of 94% of all apprenticeship training.

• The government believes it is essential business practice to broaden the training market, to make it more competitive and to ensure there are flexible options for industry, employers and trainees. Great benefits have already been obtained by opening up the training market. There are many more young people with a job, and developing their skills through formal training. Many areas where there was previously no formal training now employ trainees.

• The ACT Accreditation and Registration Council has strict criteria and guidelines for all registered training providers. The Office of Training and Adult Education has a comprehensive auditing and monitoring regime in place to ensure that quality training is delivered by all providers.

Conclusion 3: stop benchmarking against Victorian TAFE

• The ACT benchmarks against a national average not against Victorian TAFE.

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Number

14.1

Organisation

Autism Association of the ACT (supplementary)

Issue

Diagnostic capacity of Health and Community Care

Response

CHADS, CAMHS and the Child, Youth and Women’s Health Program are currently collaborating on development of an interagency multidisciplinary diagnostic assessment program for children suspected of having Autism Spectrum Disorder.

14.2 Autism Association of the ACT (supplementary)

Additional Autism money for CHADS is to be reclaimed from other areas of CHADS

The additional funds are available as the result of efficiencies implemented within Children’s, Youth and Family Services Bureau. They are not coming from elsewhere in CHADS.


Concern about restrictive criteria for resource allocation

CHADS autism specific early intervention programs base the number of students in each class on needs of the students and severity of the disability. Minimum teacher:client ratio is 2:4 - maximum is 2:6.

The department reorganised services in late 1999 to allow the Hughes autism unit to accommodate within existing resources 16 – 24 children with autism instead of 12 children for the 2000 school year. This reorganisation involved changes to class times to enable more efficient use of current facilities across the week and implementation of one additional class.

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Overcrowding at Hughes Autism Unit

The department is currently investigating more appropriate facilities for the Hughes Autism Early Intervention Unit.

The department reorganised services in late 1999 to allow the Hughes autism unit to accommodate within existing resources 16 – 24 children with autism instead of 12 children for the 2000 school year. This reorganisation involved changes to class times to enable more efficient use of current facilities across the week and implementation of one additional class.

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Number

14.5

Organisation

Autism Association of the ACT (supplementary)

Issue

Performance measures for CHADS not clear

Response

The current performance measure does measure the “number of eligible children who attended in an early intervention unit”. This measure measures throughput of children in a calendar year. Eligibility criteria for early Intervention Units are in place. School counsellors assess eligibility against these criteria. Eligible children are offered places. It is the prerogative of parents to agree to assessment for eligibility for placement, and to accept or not accept placement when offered. Many parents choose mainstream settings.


Recommended range of administrative initiatives to improve service

The new database in Children’s, Youth and Family Services (CHYPS) has greatly expanded the range of client information and service information to CHADS for forward planning purposes. This will enable more accurate and detailed forward estimates proposals to be prepared and submitted in the future.

Significant progress has been made in the past 12 months on interagency cooperation between CHADS, Student Participation, CAMHS and the Child, Youth and Women’s Health Service for interagency collaboration for children with special needs.

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15.1 Volunteering ACT Audit of Community Facilities promised in last budget has not taken place

The building conditions audit of community facilities is scheduled as part of the Department’s Asset Management Plan for 2000/01 and is expected to commence August 2000. The audit will provide information on the overall condition of the community facilities thus enabling more informed decisions about relative priorities of works required.

All community facilities have continued to be maintained throughout the year with budget allocations being broadly consistent with that of previous years.

15.2 Volunteering ACT Consideration be given to the introduction of the School and Community Involvement Program

Discussions will be held with Volunteering Australia to see how DECS and it can work together.

Number

15.3

Organisation

Volunteering ACT

Issue

Suspension of the Young People’s Sport and Recreation Development Program

Response

The Young People’s Sport and Recreation Development Program was relocated to the Aboriginal Corporation for Sport and Recreational Activities located at Boomanulla Oval,

.Narrabundah in June 1999.

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Appendix 3 Submissions received

1. Autism Association of the ACT Inc 2. Barnardos Australia 3. Archdiocese of Canberra and Goulburn – Catholic Education Office 4. Toora Single Wimmin’s Shelter 5. Care Financial Counselling and Consumer Credit Legal Service 6. ACT Council of P&C Associations Inc 7. Audrey Guy 8. Belconnen Community Services Inc 9. Youth Coalition of the ACT Inc 10. Council on the Ageing (ACT) 11. Murringu Canberra Inc 12. ACTCOSS 13. Australian Education Union (ACT Branch) 14. Autism Association of the ACT (supplementary submission) 15. Volunteering ACT 16. ACT Council of P&C Associations Inc (Supplementary) 17. Lowana Young Women’s Service

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Appendix 4 Witnesses at public hearings

22 February 2000

Mr Bill Stefaniak Minister for Education

Ms Fran Hinton Chief Executive, Department of Education and Community Services (DECS)

Mr Trevor Wheeler Executive Director, Sport and Corporate Resources DECS

Mr Michael White Executive Director, Education and Training, DECS

Ms Sue Birtles Executive Director, Children’s, Youth and Family Services Bureau, DECS

24 February 2000

For the ACT Council of P&C Associations Inc

Mr Grant Battersby, President

Mr Trevor Cobbold, Secretary

For the Australian Education Union ACT Branch

Mr Clive Haggar, President

For the Richmond Fellowship

Mr Wilf Rath, Director

For the Association of Parents and Friends of ACT Schools

Ms Maureen Sellwood, President

Mr Jim Collins, Committee Member

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For the Autism Association of the ACT

Dr Andrew Brien, President

Mr Robert Buckley, Committee Member

For the ACT Council on Social Service

Mr Daniel Stubbs, Director

Mr David Matthews, Project Officer

For the Youth Coalition of the ACT

Ms Kerry Browning, Executive Officer

Ms Melanie Earl, Policy Officer

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Appendix 5 Dissenting report—Mr Harold Hird MLA

The Report by the Standing Committee on Education, Community Services and Recreation on the 2000-01 Draft Budget of the Department of Education and Community Services and Related Agencies is unreliable, and should consequently be rejected by the ACT Legislative Assembly.

The Report makes a number of recommendations and draws a number of conclusions based on evidence which was put before it, but the accuracy of which is largely untested. The rationale behind many of the findings of the report has been unable to be argued, or agreed, by the Minister responsible for the preparation and presentation of the Draft Budget.

In simple terms the Committee’s operational approach was wrong. The Minister was called upon to explain (and defend) the Draft Budget, and, as a later step, interested individuals and organisations were then provided with the opportunity to express their views.

The Minister was not given the chance to explain (or defend) the Draft Budget in light of any views, statements or opinions which may have arisen in later submissions. This is in direct contrast to the methodology normally adopted by Standing Committees, where the relevant Minister and officials are given the final opportunity to address the Committee.

The Draft Budget is, after all, the responsibility of the Minister, and as such, the Minister must be given the opportunity to respond to comments, criticisms and statements in relation to it.

This did not occur in the case of the consideration of the 2000-01 Education Draft Budget by the Education Committee.

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The Report contains a number of recommendations which are based on the evidence provided by witnesses to the inquiry. It cannot be disputed that some of this evidence would have been contradicted by the Minister. In fact, in earlier evidence, some of it was. The final Report however, gives an obvious appearance of acceptance of evidence given by other witnesses as being sound.

It is accepted that if a different operational approach to the inquiry had taken place, some, or even many, of the findings may have been similar. However, this cannot be quantified in any way, and the opportunity for a balanced finding, based on a fair inquiry, is now lost.

It must also be disputed as to whether the terms of the resolution to send the matter to an inquiry have been adequately addressed.

The Assembly resolved that:

“The draft 2000-01 Budget for each appropriation unit be referred to the relevant General Purpose Standing Committee, to consider the expenditure proposals, revenue estimates and the capital works program for each portfolio and make recommendations that maintain or improve the operating result;” (a number of organisational references were also listed).

The Report as presented demonstrates little or no pretence at making recommendations which would result in the maintenance or improvement of the operating result for this appropriation unit.

The majority of the Committee appears to have completely bypassed the opportunity to have input into the budget process at the draft stage. This opportunity is rare, or even unique, in areas of public governance, and the lack of constructive acceptance of the chance is to be regretted.

A number of recommendations made in the Report are of the type normally associated with post-budget Estimates hearings, and should have been retained for

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that format. Recommendations relating to the issues of accountability for social outcomes, and service purchasing processes are better debated at this time. These issues are difficult to reconcile with the terms of reference for this inquiry, and whilst no one denies the right of the community to have a strong interest in them, their importance risks being discounted by their being considered out of context.

It is also noted that the report makes little or no reference to revenue estimates, or to the capital works program, despite these being specifically mentioned in the terms of reference.

The Committee has noted that it had to work within a tight time frame to prepare its report, but this cannot be used as an excuse for not addressing the issues resolved by the Assembly. It could alternatively be argued that the Committee spent too much time on issues outside its references, and that this is the major reason that it could not fully meet its responsibilities.

To summarise, it is argued that:

• the majority of the Committee has reached its findings on a number of issues on the basis of untested or incomplete information;

• the Minister has not been given adequate opportunity to respond to issues raised in the course of the inquiry, and

• the Report has not responded adequately to the provisions of the resolution establishing the Inquiry.

As well as the above general issues, a number of specific elements of the Report invite a dissenting response.

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Maintenance of Real Terms Funding for Government Schools

The Committee spent more time on this issue than other, and showed a clear interest in understanding the Budget position. The Minister and Departmental officers were questioned at length, and in depth, on the detail of the Draft Budget in relation to the 1998 Government commitment to maintain primary and secondary school funding in real terms.

The Council of the Parents and Citizens Associations submitted that for a number of reasons the position in the Draft Budget papers did not demonstrate that this commitment was being kept.

A prime example of differences between the Minister and the Council is in the area of efficiency dividends. The Council argued that an efficiency dividend was drawn from the education appropriation each year, and the final bottom figure of the budget was thus compromised.

The Minister, in earlier evidence had categorically stated that this was not the case. In this instance the Minister had another opportunity to respond, as the Council issued a media release stating its position, prior to it giving evidence. The Minister arranged for the Council to be advised that it was in error, however the Council adhered to its original argument.

In this instance the majority of the Committee, in its report, has given credence to the Councils view. This credence automatically results in a perception that the majority of the Committee finds that it cannot trust the statements of the Minister. This is a dangerous position, as the issue was not one of opinion, it was one of fact. If the majority of the Committee cannot accept fact, then its conclusions are dangerously impaired.

Another issue is one of interpretation. The Council has argued strongly that the Government has not kept to its commitment, however it argues in terms of

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expenditure per student basis. The Minister has presented the case that the Government’s commitment was in terms of an overall education appropriation.

Again the majority of the Committee has given credence to the Council’s view, and its conclusion is once again flawed.

Teacher salaries

The Report states that it sees the fact that a specific amount has not been allocated for an increase in salaries for schoolteachers as a cut in funding for schools. It is not impertinent to argue that teacher salaries are part of school funding, but the majority of the Committee chooses to ignore this argument in order to justify an argument that commitments are not being kept.

In fact this is one of the very issues where the terms of the inquiry have not been met. If the majority of the Committee wanted a specific item for teacher salary increases, it was incumbent upon members make such a recommendation in such a way that would “improve or maintain the operating result”.

Teacher “Shortage”

The majority of the Committee makes a recommendation based on the concept of teacher shortages. There has been no basis provided for this assessment, apart from a throwaway line provided by the Australian Education Union.

Conveniently ignored is evidence given by the Minister that a recent advertisement for teachers in the ACT drew 1000 applications for 240 positions. This statement would satisfy most people that the teacher numbers position, in the ACT at least, was not a problem.

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Social and Community Service (SACS) Award

Again the majority of the Committee has presented a recommendation which appears to ignore a select part of the advice presented to it. The situation is clear: the Award does not have compulsory application in the ACT, and it is therefore not possible to undertake an analysis of its effect.

Child Health and Development Service (CHADS)

The majority of the Committee has made a comment in relation to a review of the demand for early intervention. No such review exists, however it is acknowledged that one has been suggested.

The comment states that additional resources must be found in certain circumstances. This again goes beyond the scope of the inquiry. A suggestion as to where funds could be diverted from may be appropriate, but the process is not about the “bottom line”.

An overall opinion of the report as presented by the majority of members of the Committee is that it is based on unsound methods, and as such is unreliable.

It also seeks to shirk its responsibilities in that it does not address the question of making recommendations, which would maintain or improve the operating result.

The Draft Budget process currently under way is new and novel, and it is acknowledged that treading new territory creates difficulties. There is no doubt that the Committee has worked hard, and has sought to provide the opportunity for the maximum input from the community and the Minister and his Department.

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However, on balance, the terms of reference have not been adequately addressed, and the conclusions are unsound.

Consequently it is recommended that the majority report should not be accepted.

Harold Hird MLA

27 March 2000

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